The observer deployment methodology adopted should aim at achieving the observation project's goals in a cost-effective manner. Within an available budget, there are a number of mixes of approaches that could be taken. The two initial major observer deployment issues to be addressed are:
Coverage
There has been a tendency for election observation deployment to concentrate on mass observation of occurrences on voting day and to focus on the most accessible geographic locations. Such restricted coverage may result in flawed observation results. It may also be a less effective way of using available financial resources, particularly if mass observation of voting day activities requires the engagement of a significant proportion of inexperienced observers.
Planning
Effective observer deployment is not achieved without considerable advance planning, including:
- selecting activities and locations to be observed;
- budgeting and financial control;
- liaison with electoral authorities to ensure deployment plans are based on accurate location and timing data for election activities;
- managing observer logistics (see Observer Logistics).
Advance deployment plans should clearly allocate each observer to particular locations at defined times, and this information needs to be clearly conveyed to observers at training or briefing sessions. Observer teams for particular locations (see Observer Team Structure) should be structured to enable the most effective use of available resources.
Deployment Strategy Based on Risk Analysis
The basic element of determining observer deployment should be a careful risk or strategic analysis of all election processes, taking into account any potential regional differences within the area of the election. These analyses should draw on both past performance information and current factors. They are a basic tool not only for identifying areas at risk that should be monitored, but also for prioritising observation activities to provide a cost-effective use for available funding.
Risk Analysis Methodology
For election observation, a simple methodology for this risk analysis would be to:
- identify all activities that contribute to the election's outcome;
- identify the impact of faulty implementation of each of these activities on the election's outcome;
- assess the relative importance of these impacts;
- identify the institutional and environmental controls present that will assist in ensuring free, fair and effective conduct of each of the identified activities;
- identify the nature and strength of threats to these controls;
- from assessing the threats against controls and impacts, rate each activity according to risk potential.
As an example, take an activity such as the recruitment process for voting station and counting staff. In determining whether this needs to be monitored, a basic risk analysis would consider questions such as the following:
- What will be the impact of insufficient, incompetent or biased staff on the election outcome?
- Are there adequate formal criteria for staff selection?
- Who is responsible and what are the procedures for selection and appointment and what are the capacities to manage these equitably?
- What is past experience with staff selection, reliability and performance?
- How experienced is the pool of potential staff and what is the nature and quality of training available?
- How independent of political forces is the management framework for this staff?
- Do staff need to sign a code of conduct or similar document (and if so how adequate is this document and its enforcement) before appointment?
- Given the answers to the above, what is the likelihood of problems occurring with staff recruitment, and how influential on election outcomes will these be in comparison to the results of other election activities?
Those activities or geographic areas assessed as being at high risk should receive priority of resource allocation in the observer deployment plan.
Proper risk analysis requires sound knowledge of the processes under review. This knowledge may be built up progressively, particularly during long-term monitoring projects or where observation planning commences well before the initiation of formal election processes. It is prudent to undertake regular reviews of the risk analyses and re-assess deployment strategies.
Deployment Timing
Effective observer deployment depends on timely and appropriate recruitment and training processes (see Observer Sources and Recruitment), logistical planning (see Observer Logistics), and deployment plans. Timing of deployment should aim to allow observers sufficient time to become familiar with the particular environment in which they are monitoring and the processes being observed, as well as establish contacts with local information sources.
For all observer projects, deployment timing is interdependent with logistical planning. Sufficient time must be allowed for observer transport to their assigned stations, with careful attention where observers are to be deployed at considerable distance from their home or observer base, and where transport infrastructure or weather conditions are questionable. It is prudent to have observers at their assigned areas at least one full day before official observation activity begins.
For international observer missions, in-country deployment timing should also allow for a sufficient induction and technical training, team-building, and country familiarisation, plus transport to and familiarisation with assigned locations prior to commencement of observation activity. Depending on the complexity of the environment, for fully effective observation, completion of these tasks could take around seven days.
Flexibility
Deployment plans may need to change during the course of an observation project. This may be due to:
- funding reasons (additional funds being made available or expected funding being reduced);
- reviews of risk analyses;
- access problems for observers due to weather, security or insurmountable transport and equipment constraints.
In these circumstances, decisions on deployment changes generally have to be made quickly, and redeployment managed rationally, rather than reactively, so that it affects, to the least possible extent, the representative coverage of activities and locations. There is, Therefore, the need for some flexibility and contingency capacity in deployment planning. Efficient re-allocation of observer resources will also require preparation of logistical contingency plans (see Observer Logistics).
